{"id":838,"date":"2020-02-17T15:10:31","date_gmt":"2020-02-17T14:10:31","guid":{"rendered":"https:\/\/wpethzprd.ethz.ch\/energy\/?p=838"},"modified":"2025-03-27T16:07:15","modified_gmt":"2025-03-27T15:07:15","slug":"swiss-solar-power","status":"publish","type":"post","link":"https:\/\/blogs.ethz.ch\/energy\/swiss-solar-power\/","title":{"rendered":"Switzerland\u2019s strategy will not deliver the solar power it needs. Here\u2019s why. \/ Die Strategie des Bundesrats wird die ben\u00f6tige Solarenergie nicht liefern. Die Gr\u00fcnde warum."},"content":{"rendered":"\t\t
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By L\u00e9onore H\u00e4lg<\/h2>\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t
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L\u00e9onore H\u00e4lg<\/a> is currently finalizing her PhD thesis in the Energy Politics Group. Her research focuses on the interactions between the design of technology deployment policies, the politics behind such designs, and technological change in the energy sector. In the future, she will work as a scientific collaborator in the Group for Renewable Energies<\/a> at the Zurich University of Applied Sciences (ZHAW).<\/em><\/p>\t\t\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t

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Die deutsche Version des Textes finden Sie weiter unten.<\/em><\/p>

The Swiss federal council proposes to support large-scale solar PV with competitive auctions for one-off investment grants. This will not scale up solar PV investment to the extent necessary to reach the Swiss climate and energy targets. I offer suggestions on how to improve the proposal.<\/strong><\/h3>

In May 2017, Swiss voters accepted the Energy Strategy 2050 and thus a fundamental reform of the Swiss energy system. Deployment of renewable energy technologies, such as solar photovoltaics (PV), wind, and biomass, needs to be drastically accelerated to achieve the targets set for 2035 and to honour the Swiss contributions to the Paris Agreement (see Figure 1).<\/p>

Large-scale solar PV installations will play an important role in achieving the Swiss energy transition. Yet, additions of PV installations with capacities greater than 100 kWp remain low: In 2018, only 412 such installations were added with a total capacity of 94.54 MWp<\/a> which could produce roughly 95 GWh per year, serving about 20,000 4-person households<\/a>. This meagre uptake is explained by the long waiting time to receive support as well as, in many regions, the low remuneration of the generated electricity<\/a>.<\/p>

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Figure 1: Annual renewable electricity production in Switzerland between 2000-2018, and target values for 2020 and 2035. Source: SFOE 2019<\/a>.<\/em><\/p>

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What does the federal council propose?<\/h3>

Developers of large-scale solar PV projects can currently directly apply for one-off investment grants. Yet, this support will run out by 2022. In September 2019, federal councillor Simonetta Sommaruga revealed plans to extend the support period for solar PV beyond 2022<\/a> and proposed competitive auctions as a tool to allocate one-off investment grants to specific large-scale solar PV projects \u2013 a world\u2019s first. The federal council\u2019s intention is to unleash the potential of large solar PV cost-efficiently in order to reach the 2035 solar PV deployment targets.<\/p>

Now, at first sight, this may seem the right way to go. The extension of the support period for large-scale solar PV is urgently needed to tap into the unused potential, and determining the level of support based on competitive auctioning has shown to reduce taxpayers\u2019 costs<\/a>. The proposed competitive auctions for one-off investment grants will however mainly suit the actors already active in the Swiss solar PV market: public utilities, large retailers, local commercial and industrial enterprises. These actors can access cheap finance for solar PV investments through their balance sheets and will be motivated to do so in case they receive an investment grant. Such grants lower their investment costs and impose only little transaction costs for policymakers and investors alike. Compared to other support types, one-off investment grants do not require comprehensive financial management by the involved parties and thus represent a simple tool to support investments.<\/p>

Why won’t the proposal work?<\/h3>

However, to achieve the level of investment in large-scale solar PV required to reach the set targets, <\/span>new actors<\/span><\/i> have to enter the Swiss solar PV market, such as international and new local project developers and professional investors (some of which are Switzerland-based but so far only active abroad, e.g. Edisun Power<\/a>). Such developers are not deterred by high investment costs nor by the complex financial management of their assets – these are part of their daily business. However, they need a low-risk investment environment as they acquire financing on a per-project basis from banks and financial investors and are thus sensitive to the overall cost of capital.<\/p>

A high-risk environment reduces the share of the investment that can be financed by cheap bank loans and increases the return expectations of other investors. For large-scale solar PV installations, in particular, uncertainty about their future cash flows adds an additional risk margin to the cost of capital<\/a>. In simple terms, if the initial investment is subsidized but future revenues remain uncertain, the incumbent players – who have access to cheaper finance – benefit. In the Swiss case, this means the same old utilities will build the PV plants because they can raise capital on their balance sheet. New actors, who need to raise capital on projects, will not enter the market and solar PV investments will probably continue at today\u2019s slow pace.<\/p>

What will work<\/h3>

As Switzerland needs to accelerate its efforts to attract investments in solar PV, I suggest awarding solar PV auction winners with power purchase agreements (PPAs), instead of running competitive auctions for one-off investment grants. PPAs are contracts between an electricity generator and an electricity buyer that define the conditions at which electricity is sold, e.g. how much, for how long, and at what price. PPAs ensure stable revenues and shield solar PV investors from market risks for a given number of years<\/a>. As a result, they strengthen investors\u2019 confidence and reduce <\/span>the risk premium on their capital<\/a>.<\/p>

Competitive auctions for PPAs have been implemented with great success in many countries which proves project developers\u2019 interest in such support schemes. Portugal, for instance, achieved record-low solar PV auction results in July 2019 with remuneration levels as low as 1.48 EURct.\/kWh for a duration of 15 years<\/a>. In Germany, various solar PV auctions in 2019 resulted in remuneration levels between 4.80 and 6.59 EURct.\/kWh for a duration of 20 years<\/a> and capacity additions of almost 1.5 GW. Though similarly successful auction outcomes are unlikely in Switzerland in the upcoming years as professional project developers and renewable energy investors are lacking, solar irradiation levels are lower than in Portugal, labour costs are higher, and open-space installations are currently politically unpopular. But such auctions could open a door for new actors to enter the Swiss PV market.<\/span><\/p>

In conclusion, I welcome the proposal to continue the support for large-scale solar PV, but I urge the Federal Council to reconsider how they plan to design the support. The Federal Council first needs to make up their mind about the type of installation and investors they would like to attract before choosing the support mechanism as the risk and revenue requirements differ amongst different investors. Specifically, they should reconsider their enthusiasm for one-off investment grants because these are unlikely to bring new actors into the Swiss solar PV market and thus jeopardize rapid solar PV deployment. In contrast, stable, long-term remuneration levels lower investment risks and the cost of capital of and thus stimulate investments in large-scale solar PV installations. Therefore, I suggest Swiss policymakers follow the examples of our neighbouring countries and introduce competitive auctions for PPAs in order to boost solar PV deployment and increase the chances to reach the Swiss climate and energy targets.<\/p>

The author thanks Bjarne Steffen for his valuable input.<\/em><\/p>

Cover photo from Upslash<\/a>.<\/em><\/p>\t\t\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t

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Keep up with the Energy Blog @ ETH Zurich on Twitter @eth_energy_blog<\/a>.<\/em><\/p>

Suggested citation: H\u00e4lg\u200b, L\u00e9onore. \u201cSwitzerland\u2019s strategy will not deliver the solar power it needs. Here\u2019s why\u201d, Energy Blog @ ETH Zurich, ETH Zurich, February 17, 2020, https:\/\/blogs.ethz.ch\/energy\/swiss-solar-power\/<\/a><\/span><\/em><\/p>\t\t\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t

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If you are part of ETH Zurich, we invite you to contribute with your findings and your opinions to make this space a dynamic and relevant outlet for energy insights and debates. Find out how you can contribute<\/a> and contact the editorial team here<\/a> to pitch an article idea!\n<\/strong><\/p>\t\t\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t

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Die Strategie des Bundesrats wird die ben\u00f6tige Solarenergie nicht liefern. Die Gr\u00fcnde warum.<\/h1>
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Der Bundesrat plant wettbewerbliche Ausschreibungen f\u00fcr einmalige Investitionsbeitr\u00e4ge zur Unterst\u00fctzung grosser Photovoltaikanlagen. So werden die Photovoltaikinvestitionen, die n\u00f6tig sind, um die Schweizer Klima- und Energieziele zu erreichen, jedoch nicht anziehen. In diesem Blogbeitrag biete ich Verbesserungsvorschl\u00e4ge f\u00fcr den bundesr\u00e4tlichen Plan.<\/strong><\/h3>

Im Mai 2017 hat die Schweizer Stimmbev\u00f6lkerung der Energiestrategie 2050 und somit einer fundamentalen Reform des schweizerischen Energiesystems zugestimmt. Der Ausbau der erneuerbaren Energien wie Photovoltaik (PV), Wind und Biomasse muss sp\u00fcrbar hochgefahren werden, um die Ziele, die f\u00fcr 2035 gesetzt wurden, zu erreichen und so den Schweizer Beitrag zum Pariser Klimaabkommen zu leisten (siehe Abbildung 1).<\/span><\/p>

Grosse PV-Anlagen werden eine wichtige Rolle in der schweizerischen Energiewende spielen. Jedoch werden heute nur wenige neue PV-Anlagen mit Kapazit\u00e4ten \u00fcber 100 kWp gebaut: Im Jahr 2018 wurden zum Beispiel lediglich 412 solche Anlagen mit einer Gesamtkapazit\u00e4t von 94.54 MWp<\/a> gebaut, die knapp 95 GWh pro Jahr produzieren und so etwa 20’000 4-Personen-Haushalte versorgen<\/a> k\u00f6nnen. Der d\u00fcrftige Ausbau kann durch die langen Wartezeiten f\u00fcr Unterst\u00fctzungsleistungen und die in vielen Regionen tiefen Stromliefertarife<\/a> erkl\u00e4rt werden.<\/span><\/p>

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Abbildung 1. Entwicklung der j\u00e4hrlichen Stromproduktion aus erneuerbaren Energien (ohne Wasserkraft) zwischen 2000 und 2018 und Richtwerte f\u00fcr 2020 und 2035. Quelle: BFE 2019<\/a>.<\/em><\/p>

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Was beinhaltet der bundesr\u00e4tliche Plan?<\/h3>

Heute k\u00f6nnen Entwickler von grossen PV-Projekten einmalige Investitionsbeitr\u00e4ge direkt beantragen. Diese Unterst\u00fctzung l\u00e4uft jedoch Ende 2022 aus. Im September 2019 hat Bundesr\u00e4tin Simonetta Sommaruga deshalb Pl\u00e4ne pr\u00e4sentiert, welche die Unterst\u00fctzung \u00fcber 2022 hinaus verl\u00e4ngern sollen und wettbewerbliche Ausschreibungen<\/a> zur Verteilung von einmaligen Investitionsbeitr\u00e4gen an einzelne grosse PV-Projekte vorschlagen. Die Schweiz w\u00e4re somit das einzige Land weltweit mit diesem Instrument. Der Bundesrat bezweckt so das Potenzial f\u00fcr grosse PV-Anlagen kosteng\u00fcnstig zu erschliessen, um die PV-Ziele f\u00fcr 2035 zu erreichen.<\/p>

Auf den ersten Blick scheint dies ein guter Weg zu sein. Die Verl\u00e4ngerung der Unterst\u00fctzung f\u00fcr grosse PV-Anlagen wird dringend ben\u00f6tigt, um das ungenutzte Potenzial anzuzapfen. Auch wurde bereits gezeigt<\/a>, dass die Steuerzahler weniger belastet werden, wenn wettbewerbliche Ausschreibungen die H\u00f6he der Unterst\u00fctzungszahlungen bestimmen. Jedoch eignen sich die vorgeschlagenen wettbewerblichen Ausschreibungen f\u00fcr Investitionsbeitr\u00e4ge vor allem f\u00fcr die Akteure, die jetzt schon im Schweizer Solarmarkt aktiv sind: \u00f6ffentliche Elektrizit\u00e4tsversorgungsunternehmen (EVU), grosse Detailh\u00e4ndler und lokale Gewerbe- und Industriebetriebe. Diese Akteure k\u00f6nnen PV-Investitionen billig \u00fcber ihre Bilanz finanzieren und werden dies auch machen, wenn sie Investitionsbeitr\u00e4ge erhalten. Solche Beitr\u00e4ge senken ihre Investitionskosten und f\u00fchren weder f\u00fcr den Bund noch f\u00fcr die Investoren zu grossen Transaktionskosten. Im Vergleich zu anderen Unterst\u00fctzungsmassnahmen erfordern Investitionsbeitr\u00e4ge auch kein umfassendes Finanzmanagement und sind somit relativ simpel ausf\u00fchrbar.<\/span><\/p>

Warum wird der Plan jedoch nicht funktionieren?<\/h3>

Um die ben\u00f6tigten Investitionen in grosse PV-Anlagen zu erreichen, m\u00fcssen jedoch neue Akteure in den Schweizer Solarmarkt kommen, wie internationale und neue lokale Projektentwickler und professionelle Investoren (von welchen einige, wie zum Beispiel Edisun Power<\/a>, in der Schweiz ans\u00e4ssig aber nur im Ausland aktiv sind). Solche Akteure werden weder von hohen Investitionskosten noch vom komplexen Finanzmanagement ihrer Anlagen abgeschreckt. Diese sind Teil ihres allt\u00e4glichen Gesch\u00e4fts. Diese Akteure brauchen aber eine risikoarme Investitionsumgebung, da sie die Finanzierung einzelner Projekte von Banken und Finanzinvestoren erwerben m\u00fcssen und deshalb abh\u00e4ngig der Finanzierungskosten sind.<\/p>

Eine risikoreiche Investitionsumgebung verkleinert den Investitionsanteil, der \u00fcber billige Bankdarlehen finanziert werden kann, und vergr\u00f6ssert die Renditeerwartungen anderer Investoren. Insbesondere f\u00fcr grosse PV-Anlagen tr\u00e4gt Unsicherheit \u00fcber deren zuk\u00fcnftigen Kapitalfluss zu einer zus\u00e4tzlichen Risikomarge bei den Kapitalkosten<\/a>\u00a0bei und verteuert so das Projekt. Einfacher gesagt: Wenn die Anfangsinvestition subventioniert wird aber die zuk\u00fcnftigen Einnahmen unsicher sind, werden die etablierten Akteure, die Zugang zu billigerer Finanzierung haben, bevorteilt. Im Fall der Schweiz heisst das, dass die gleichen EVU die PV-Anlagen bauen werden, da sie Kapital \u00fcber ihre Bilanz beschaffen k\u00f6nnen. Neue Akteure, die spezifisch Kapital f\u00fcr Projekte aufnehmen m\u00fcssen, werden nicht in den Markt kommen und die Investitionen in PV-Anlagen werden wahrscheinlich im heutigen langsamen Tempo weitergehen.<\/p>

Was funktionieren kann<\/h3>

Da die Schweiz ihre Bestrebungen, Investitionen in PV-Anlagen anzulocken, vergr\u00f6ssern muss, schlage ich vor, wettbewerbliche Ausschreibungen f\u00fcr Stromabnahmevertr\u00e4ge (power purchase agreements [PPAs]) statt f\u00fcr einmalige Investitionsbeitr\u00e4ge durchzuf\u00fchren. Stromabnahmevertr\u00e4ge beinhalten Vereinbarungen zwischen Stromproduzenten und Stromabnehmern, die die Bedingungen zu welchen der Strom verkauft wird, d.h. der R\u00fcckliefertarif und die L\u00e4nge des Vertrags, definieren. Stromabnahmevertr\u00e4ge gew\u00e4hrleisten stabile Einnahmen und schirmen PV-Projekte f\u00fcr eine bestimme Anzahl Jahre vor Marktrisiken ab<\/a>. Als Folge st\u00e4rken sie das Vertrauen der Investoren und vermindern die Risikomargen<\/a>, die diese f\u00fcr ihr Kapital verlangen.<\/p>

Wettbewerbliche Ausschreibungen f\u00fcr Stromabnahmevertr\u00e4ge wurden schon in vielen L\u00e4ndern mit Erfolg eingef\u00fchrt, was das Interesse von Projektentwicklern in solche Unterst\u00fctzungsmassnahmen beweist. In Portugal zum Beispiel wurden im Juli 2019 in PV-Ausschreibungen rekordtiefe R\u00fcckliefertarife von bis zu 1,48 EURct.\/kWh \u00fcber 15 Jahre<\/a> erreicht. In Deutschland wurden im 2019 in verschiedenen PV-Ausschreibungen R\u00fcckliefertarife zwischen 4,80 und 6,59 EURct.\/kWh \u00fcber 20 Jahre<\/a> f\u00fcr neue Anlagen mit einer Gesamtkapazit\u00e4t von fast 1,5 GW erzielt. \u00c4hnlich erfolgreiche Ausschreibungsergebnisse sind in den n\u00e4chsten Jahren f\u00fcr die Schweiz zwar nicht zu erwarten, da professionelle Projektentwickler und Investoren f\u00fcr erneuerbare Energien fehlen, die Sonneneinstrahlung tiefer ist als in Portugal, die Lohnkosten h\u00f6her sind und Freifl\u00e4chenanlagen zurzeit politisch nicht machbar sind. Aber sie k\u00f6nnten eine T\u00fcre f\u00fcr neue Akteure im Schweizer Solarmarkt \u00f6ffnen.<\/span><\/p>

Mein Fazit ist, dass ich den bundesr\u00e4tlichen Vorschlag zur Verl\u00e4ngerung der Unterst\u00fctzung f\u00fcr grosse PV-Anlagen begr\u00fcsse. Jedoch halte ich den Bundesrat dazu an, seine Pl\u00e4ne f\u00fcr die Art der Unterst\u00fctzung zu \u00fcberdenken. Die Regierung sollte zuerst entscheiden, welche Art von Anlagen und Akteuren sie in den Markt holen m\u00f6chte, bevor sie den Unterst\u00fctzungsmechanismus w\u00e4hlt, da sich die Risiko- und Gewinnanforderungen zwischen verschiedenen Investoren unterscheiden. Sie sollte insbesondere ihren Enthusiasmus f\u00fcr einmalige Investitionsbeitr\u00e4ge \u00fcberdenken, da es unwahrscheinlich ist, dass diese neue Akteure in den Schweizer Solarmarkt bringen werden, und sie so den schnellen PV-Ausbau gef\u00e4hrden k\u00f6nnen. Im Gegenteil vermindern stabile und langfristige R\u00fcckliefertarife die Investitionsrisiken und so die Finanzierungskosten von grossen PV-Anlagen und stimulieren so Investitionen in solche Anlagen. Ich schlage deshalb vor, dass der Bundesrat und die Schweizer Politiker dem Beispiel unserer Nachbarsl\u00e4nder folgen und wettbewerbliche Ausschreibungen f\u00fcr Stromabnahmevertr\u00e4ge einf\u00fchren, um den PV-Ausbau anzukurbeln und so die Chancen, die Schweizer Klima- und Energieziele zu erreichen, erh\u00f6hen.<\/span><\/p>

Die Autorin dankt Bjarne Steffen f\u00fcr seinen wertvollen Beitrag zu diesem Blogeintrag.<\/i><\/p>\t\t\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t

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Bleiben Sie auf dem Laufenden beim Energy Blog @ ETH Z\u00fcrich auf Twitter\u00a0 @eth_energy_blog<\/a>.<\/em><\/p>

Empfohlene Zitierweise: H\u00e4lg, L\u00e9onore. \u201cDie Strategie des Bundesrats wird die ben\u00f6tige Solarenergie nicht liefern. Die Gr\u00fcnde warum.<\/span><\/i>\u201d, Energy Blog @ ETH Zurich, ETH Zurich, February 17, 2020, https:\/\/blogs.ethz.ch\/energy\/swiss-solar-power\/<\/a><\/em><\/p>\t\t\t\t\t\t\t\t<\/div>\n\t\t\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/div>\n\t\t\t\t\t<\/div>\n\t\t<\/section>\n\t\t\t\t

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The Swiss federal council proposes to support large-scale solar PV with competitive auctions for one-off investment grants. This will not scale up solar PV investment to the extent necessary to reach the Swiss climate and energy targets. I offer suggestions on how to improve the proposal.<\/p>\n","protected":false},"author":45516,"featured_media":840,"comment_status":"open","ping_status":"open","sticky":false,"template":"","format":"standard","meta":{"footnotes":""},"categories":[264264],"tags":[264264],"class_list":["post-838","post","type-post","status-publish","format-standard","has-post-thumbnail","hentry","category-renewable-energy","tag-renewable-energy"],"yoast_head":"\nSwitzerland\u2019s strategy will not deliver the solar power it needs. Here\u2019s why. \/ Die Strategie des Bundesrats wird die ben\u00f6tige Solarenergie nicht liefern. 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